Establishment of ISANGE One Stop Center for Gender Based Violence survivors within the Rwanda Nation
Rwanda National Police
Rwanda

The Problem

In Rwanda, gender-based violence (GBV) has been a widespread problem for women both during the genocide and in peacetime. GBV can be manifest as domestic violence, sexual assault and rape, and psychological abuse. In addition, economic violence is often included under the rubric of GBV. This includes inheritance disputes between a widow and her husband’s family over his property, as well as acute economic dependence of women on their husbands. Since many Rwandan women were prevented from receiving secondary educations or skills traning, they are unable to support themselves, and are less able to escape violent relationships.
Many of the violent acts committed during the 1994 genocide were gender-specific, affecting women differently than men. A post-conflict report by the United Nations estimated that at least 250,000 women were raped during the genocide and it is widely recognized by Rwandans that every woman and girl who survived the genocide survived some form of sexual assault, if not rape. Sexual violence was used as a weapon of war and took many forms, including individual rape, gang rape, rape with objects including guns, sexual enslavement and forced marriage, forced labor, and sexual torture and mutilation.

The persistence of polygamy in certain regions of Rwanda has also depleted the rights of women whose husbands have remarried, and are no longer legally bound to their husbands but remain economically dependent on them. In addition, HIV/AIDS in Rwanda has both contributed to and been exacerbated by GBV.

The medical, physical, and psychological effects of sexual violence are enormous. Unwanted pregnancies, intentionally transmitted HIV/AIDS, permanent physical scarring and medical trauma, emotional trauma and stigma are all results of the physical violence perpetrated during the genocide. In addition to sexual violence, thousands of women became widows, facing stigma and discrimination and increased risk of violence. The deep gender inequalities that are manifested in GBV are often worsened by armed conflict, while the incidence of GBV lessened after the conflict, patterns of violence continue today.

Despite the efforts of the Rwandan government to ensuring women’s equal protection under the law, including freedom of movement, right to property, freedom of employment, and access to elective offices (Rwanda’s Constitution 2003); and persecution of sexual violence under the Rwandan Penal Code, persisting social norms and customary laws that place women at a socio-economic disadvantage, and the significant stigma and discrimination that accompany rape and domestic violence, limit the ability of Rwandan society to address GBV.

Moreover, interventions aimed at addressing GBV across the country were not appropriately coordinated and could not address the complex issue of violence against women since some of the Violence against women and girl child crimes are committed across borders such as human trafficking for sexual exploitation. This situation called for continued community motivation, awareness raising and grassroots efforts to address GBV on multiple levels, other than just criminal prosecution, such as treatment of victims, changing harmful social norms and behaviors, and legal assistance.

Solution and Key Benefits

 What is the initiative about? (the solution)
The initiative through community awareness raising addresses issues of silence and ignorance on gender based violence as a human rights and, security and development issue.
The establishing community policing committees facilitates a more proactive role in prevention and response to gender based violence by the community than viewing a sole responsibility of the police.
The initiative addresses issues of survivor’s access to justice access by providing centralized legal, medical, psycho social and after crime safety at the one stop centre established in the main police hospital.
The training for police and other service providers on handling GBV survivors also addresses the issues of accountability by partners in the legal, medical and social services social.
The statistics above shows that due to community awareness on gender based violence as a security and human issue punishable crime, the number of cases reported to police increased in the first two years 2006 and 2007 for both child and adult rape against women. In the years 2008, 2009 and 2010 the numbers progressively reduced due to both increased community awareness and improved synergy and coordination between the police, prosecution, medical, civil society, local leadership and the community for improved service delivery in regard to survivors access to justice.
Other cases reported to police and forwarded to prosecution from 2006 to June 2010, include 114 cases of women murdered by their husbands, 39 cases of men murdered by their wives and 1599 cases of physical abuse between spouses.
The initiative also facilitated improved survivors of gender based violence access to police field response through the gender desk free telephone hotlines 3512 operating nationwide , Police hospital one stop centre free hotline 114, police free telephone hotline 113 operating in the southern province, and free telephone hotline 115 operating in the eastern province.
Through advocacy other hotlines have been set up including 3945 in the army gender desk 3677 in prosecution gender desk.
Establishment of one stop centre at Police national hospital for coordinated and free medical, psychosocial, judiciary and after crime safety services for the survivors of gender based violence is also a key achievement.
The placement of police officers in government hospitals to facilitate survivors of gender based violence fast access to medical services has improved the service delivery by taking shorter time and increasing opportunity to provide medical evidence and treatment faster.
All the 69 police stations have an officer specifically to handle cases of gender based violence for faster investigation and linkage with partners for improved justice access at the lowest possible level.
The enactment of the law on prevention and punishment of Gender based violence in 2008 is closely linked to the improved networking and advocacy for law reviews by the gender desk based on different cases reported to police,
The development of a police training curriculum and a standard operating procedure on handling GBV cases supports systematic and standardized service delivery.

Actors and Stakeholders

 Who proposed the solution, who implemented it and who were the stakeholders?
The initiative is a government initiative backed by appropriate policy and legal framework for its successful implementation. The 2003 Rwanda Constitution Rwanda recognizes the principle of gender equality and the country has adhered to international instruments such as the Convention on Elimination of All Discrimination against Women, Convention on Childs rights, Beijing Platform of Action and the millennium development goals.
Capitalizing on that favorable environment, the authorities of the National Police initiated such an initiative which is in line with the role of security organs in fighting against Gender based violence. The Project is run by government workers paid by government and the project work lies within their terms of reference for day to day work. The one stop-centre is based in police hospital and the personnel team includes medical staff, police officers, and psycho-social counselors. The project work is to a large extent implemented within the organizational mandate by organization staff not by short term project contracted staff be it the medical, judicial or legal fields.
The involvement of community based structures such as community policing committees, committees to fight gender based violence at village level, representatives of women councils and establishment of anti-gender based violence clubs in schools makes the project work coherent as these are well informed with first hand information on the ground and fall well within the local governance structure.
The police partnering with faith based organizations for community change of attitude through sensitization are a good opportunity for sustainability as these are good channels of communication to reach many people and what church leaders say is gospel truth for followers.
The partnership based police policy on prevention and response to gender based violence, development of a police training curriculum and standard operating procedure on handling of cases of gender based violence and survivor care sets systematic and standardized approach to dealing with gender based violence and opportunity for ongoing institutional capacity building.

(a) Strategies

 Describe how and when the initiative was implemented by answering these questions
 a.      What were the strategies used to implement the initiative? In no more than 500 words, provide a summary of the main objectives and strategies of the initiative, how they were established and by whom.
The initiative objectives include bringing on board and coordinating different actors for their increased accountability to GBV prevention and response; building police capacity and other service providers for improved service delivery; improving networking between partners for improved GBV survivor service delivery and increasing community awareness for their improved role in GBV prevention and response.
The initiative’s strategy includes (1) the establishment of one stop Centre for survivors centralized and free service delivery including medical, judiciary and psycho-social counseling in a police hospital; (2) the establishment of community policing committees and partnership with local leadership, women councils, committees for gender based violence and faith based organization provides an effective communication channel for investigation and attitude change; (3) the Police networking with government, non-governmental organizations and donor agencies to build a stronger synergy all round in terms of accountability, resource mobilization and advocacy all required for effective service delivery.
In order to effectively implement the above strategy, the National Police established mechanisms to facilitate access of survivors of GBV to of gender based violence through the gender desk free telephone hotlines 3512 operating nationwide, and through Police hospital one stop centre free hotline 114, Police free telephone hotline 113 operating in the southern province, and free telephone hotline 115 operating in the eastern province. This was supported by awareness raising campaigns countrywide to sensitize the population and more specifically rural women to report their own GBV cases and those happening in their community in general. In this regard, other hotlines have been set up including 3945 in the army gender desk and 3677 in prosecution gender desk. The Rwanda National Police also established a one stop centre at Police national hospital for coordinated and free medical, psychosocial, judiciary and after crime safety services for the survivors of gender based violence and this structure operates effectively. Finally, the placement of police officers in government hospitals to facilitate survivors of gender based violence fast access to medical services has improved the service delivery by taking shorter time and increasing opportunity to provide medical evidence and treatment faster. All the 69 police stations across country have an officer specifically to handle cases of gender based violence for faster investigation and linkage with partners for improved justice access at the lowest possible level.
By whom? All these initiatives are coordinated under the Rwanda national police Gender desk that was established in 2005 by Rwanda national police to coordinate different actors for their increased accountability to GBV prevention and response; building police capacity and other service providers for improved service delivery; improving networking between partners for improved GBV survivor service delivery and increasing community awareness for their improved role in GBV prevention and response.

(b) Implementation

 b.      What were the key development and implementation steps and the chronology? No more than 500 words
1) Establishment of Rwanda National Police Gender Desk in 2005;
2) The establishment of ISANGE one stop centre for survivors centralized and free service delivery including medical, judiciary and psycho-social counseling in a police hospital is a new concept. ISANGE means feel free, feel home.
3) The establishment of community policing committees and partnership with local leadership, women councils, committees for gender based violence and faith based organization provides an effective communication channel for investigation and attitude change.
4) Police networking with government, non-governmental organizations and donor agencies to build a stronger synergy all rounds in terms of accountability, resource mobilization and advocacy for effective service delivery.
5) The training for policemen and policewomen and other service providers on handling GBV survivors to increase the institutional capacity and accountability by partners in the legal, medical and social services.
6) The provision of legal, medical, psycho social and after crime safety at the one stop centre established in the police and government hospitals.

(c) Overcoming Obstacles

 c.      What were the main obstacles encountered? How were they overcome? No more than 500 words
Some obstacles or challenges faced by Rwanda national police gender desk include:
1) The medical services for GBV survivors is given in government hospitals which are limited in number therefore survivors may have to travel long distance to reach those hospitals.
2) The limited number of doctors in government hospitals who deal with GBV survivors and other cases also delays the service provision time for example a doctor having to attend to a woman in labour and a rape survivor.
3) Limited logistical support such as lack of enough vehicles for quick response, this indicates the need for continued partnership in terms of resource mobilization.
4) Lack of appropriate interview rooms for GBV survivors at police station level a challenge of appropriate infrastructure
5) Limited number of police officers in comparison to the problem magnitude and this necessitated even more the involvement of the community in being pro-active to keep their own security against gender based violence.
6) Some people resist change in behavior due to cultural biases even when aware of the legal provisions.
7) Poverty for some of the GBV survivors especially women prevents them from reporting due to economic dependence on their perpetrators in most cases their husbands.
The Police minimized its challenges by introducing an holistic approach for prevention and response to gender based violence since the experience provided showed that gender based violence has many risky factors including cultural beliefs that set unequal power relations between men and women, ignorance on legal rights, and women’s poverty.

More investments were done in capacity building of partners (service providers, GBV survivors, opinion leaders and community members);

Enlarging the list of partners ranging from government, civil society and, donors and members of the community proved to be very effective in terms of bringing most of contribution from each to improved service delivery within their mandate.

(d) Use of Resources

 d.      What resources were used for the initiative and what were its key benefits? In no more than 500 words, specify what were the financial, technical and human resources’ costs associated with this initiative. Describe how resources were mobilized
First and foremost the Initiative received a support from the Rwandan Government and benefited from Government Budget which covers the running costs including salaries of staff. This was facilitated by the relevancy of the concept of One stop center for GBV prevention and response as well as the government commitment to end violence against women.
The initiative also received a positive echo and a financial support from GTZ, UN system including UNIFEM, UNFPA, and UNDP. Areas of funding include capacity building for Police and GBV survivors; consultative meetings for improved service delivery for GBV survivors with medical, prosecution, civil society and legal practitioners; awareness raising for community members and local leadership on GBV; provision of equipment- computers, office furniture, monitoring camera, a motor vehicle for field response; development of advocacy materials and messages including posters, stickers, brochures, sketches, TV and radio emissions; and support to one stop centre in the police hospital for coordinated service delivery to GBV survivor.
Financial resources were mobilized through appropriate planning and elaboration of reliable project proposals submitted to the different partner organizations.

Sustainability and Transferability

  Is the initiative sustainable and transferable?
The initiative sustainability lies primarily to the existing policy and legal framework necessary for its successful implementation. Rwanda government is committed to promotion of human rights and gender equality as embedded within the constitution, Vision 2020 and the National Gender policy. A legal framework is also ensured through the law on prevention and punishment of Gender based Violence. Opportunity for sustainability is also assured through Rwanda government commitment to international instruments such as the Convention on Elimination of All Discrimination against Women, Convention on Childs rights, Beijing Platform of Action and the millennium development goals.

The initiative’s sustainability and transferability are also assured since one stop center’s staff are government workers paid by government and the project work lies within their terms of reference for day to day work. This eliminates the risk that if project external funds are terminated then the project staff would be laid off. The concept of coordinated and centralized service delivery in one stop-centre based in police hospital is also sustainable since all the human resource including medical staff , police officers, psycho-social counselors are all government workers and the physical infrastructure government.

Capacity building for police officers, medical and judiciary is a way of sustainability since knowledge acquired will be passed on to other through institutions training programs. The project work is to a large extent implemented within the organizational mandate by organization staff not by short term project contracted staff be it the medical, judicial or legal fields.

More partners are coming on board to partner with government for example in establishment of more one stop centers from national to international cooperation and this is strengthening government capability to move forward this work for the future since the key area of support is in human resource capacity building and community empowerment.

The involvement of community based structures such as community policing committees, committees to fight gender based violence at village level, representatives of women councils and establishment of anti-gender based violence clubs in schools makes the project work sustainable as these are well informed with first hand information on the ground and fall well within the local governance structure.
The police partnering with faith based organizations for community change of attitude through sensitization is a good opportunity for sustainability as these are good channels of communication to reach many people and what church leaders say is gospel truth for followers.

The partnership based police policy on prevention and response to gender based violence, development of a police training curriculum and standard operating procedure on handling of cases of gender based violence and survivor care sets systematic and standardized approach to dealing with gender based violence and opportunity for ongoing institutional capacity building therefore maximizing opportunity for sustainability.

Lessons Learned

 What are the impact of your initiative and the lessons learned?
The project meets the criteria to impact the service delivery process as indicated by the timely and free medical, judicial and psycho-social services provided in a police hospital. The time during which a rape survivor should be given medical certificate cannot exceed 72 hours as per ministerial order from ministry of Health. The impact is also realized through increased numbers of reported cases t for at first the three years of the project (2006–2008) and decline in the last 2 (2009-2010) due to increased awareness and improved service delivery.

Lessons learned:

The project has provided experience that gender based violence has many risky factors including cultural beliefs that set unequal power relations between men and women, ignorance on legal rights , women’s poverty and though an issue of human rights it is also a health and development issue therefore needs a holistic approach for its prevention and response.

It was realized that having legal and policy frameworks alone cannot address the issue of gender based violence since it’s deeply embedded within the socialization process therefore a lot of effort needs to be put on community sensitization for change of attitude and practice.
Another lesson learnt is that sustainable programs for improved service delivery should be in the mainstream of implementing institutions to ensure sustainability in terms of capacity building and appropriate infrastructure on long term basis.

Bringing on board all partners ranging from government, civil society and the donor community has been of added value to project success each of the partners contributing to improved service delivery within their mandate.

Contact Information

Institution Name:   Rwanda National Police
Institution Type:   Government Agency  
Contact Person:   Eric KAYIRANGA
Title:   Police Spokesman  
Telephone/ Fax:   +250 788311155
Institution's / Project's Website:  
E-mail:   pro@police.gov.rw  
Address:   Kacyiru, Kigali
Postal Code:   6304
City:   Kigali
State/Province:   Kigali
Country:   Rwanda

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